行政程序法定原则的厘定与适用

The Determination and Application of Adiministrative Procedure Should Stipulated by Tegislature

行政程序法定化是《中共中央关于全面推进依法治国若干重大问题的决定》的明确要求。我国法律界虽已提出和应用着行政程序法定原则,但对这一原则缺乏正确认识,从而与正当程序原则、合理原则(比例原则)、法的安定性原则相混同。行政程序法定不仅指行政程序应由法律法规规定,更指行政机关不得在成文法规定的程序之外自行增加程序。站在行政相对人的立场上,行政程序可划分为权利性程序和义务性程序两类。只有权利性程序和义务性程序的限制与排除须遵循法定原则,权利性程序则遵循正当程序原则。“违反法定程序”应从两个方面来界定,对权利性程序而言,系指违反正当程序原则;对义务性程序而言,系指违反程序法定原则。对权利性程序、义务性程序条款的限制与排除条款的解释,应遵循有利解释规则。对于改革实践中先行取消或简化义务性程序的行为,应依据程序权利保障原则加以判断,只要改革试验没有减损行政相对人的程序性权利或者增加行政相对人的程序性义务,就可以评价为合法。

Although China’s administrative legal circle has put forward and applied the principle of administrative procedure should be stipulated by legislature,legal scholars didn’t have a correct understanding of the meaning,basic requirements,scope of application and explanatory function of this principle,which is confused with the principle of due process,the principle of rationality(the principle of proportion)and the principle of stability of law.The principle not only means that administrative procedure should be stipulated by laws and regulations,but also means that Administrative agencies cannot increase procedures by themselves.From the standpoint of administrative counterpart,administrative procedure can be divided into two categories:right procedure and compulsory procedure.Only obligatory procedure and the limitation and exclusion of right procedure should follow this principle,while the right procedure should follow the principle of due process.Violation of legal procedure should be defined from two aspects.In the case of compulsory procedure,it means violation of procedure stipulated by legislature,In the case of right procedure,it means violation of due process.In the practice of reform,the behavior of canceling or simplifying compulsory procedures should be judged according to the principle of rights protection.As long as the reform experiment does not detract from the people’s procedural rights or increase the people’s procedural obligations,it can be evaluated as lawful.